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Council Meeting: July 10, 2001 Santa Monica, California

TO: Mayor and City Council

FROM: City Staff

SUBJECT: Recommendation to Adopt a Formal Position on the

Los Angeles International Airport Master Plan

INTRODUCTION

This report recommends that the City Council adopt a formal position regarding the Los

Angeles International Airport Master Plan.

BACKGROUND

The City of Santa Monica has taken a leadership role in consideration of the Los Angeles

International Airport (LAX) Master Plan and regional aviation alternatives. In November 1996,

the City Council approved a resolution requesting inclusion of fixed base operator facilities in

the LAX Master Plan in order to limit diversion of corporate jets to Santa Monica. In July 1997,

the City officially requested that the City of Los Angeles= environmental documentation

adequately address all of the impacts of the LAX Master Plan on Santa Monica and the region.

In October 1998, the City Council adopted a resolution calling for the formation of a Regional

Airport Plan for Southern California to allow for a more equitable and environmentally sound

distribution of the costs and benefits of airport development.

During 1999 and 2000, Councilmember O'Connor served on the Southern California

Association of Governments (SCAG) Aviation Task Force. The Aviation Task Force considered

regional aviation needs and opportunities and developed specific regional airport scenarios.

Based on the recommendations of the task force, a regional-based approach to aviation was

adopted as part of the final SCAG Regional Transportation Plan.

On January 18,2001, the City of Los Angeles World Airports Departments (LAWA) and the

Federal Aviation Administration released the LAX Master Plan and associated Draft

Environmental Impact Report / Environmental Impact Statement (DEIR). The Master Plan was

prepared by LAWA to address long-term issues of airport capacity, ground access and

environmental impacts. Due to the complexity of issues and the length of the documents,

a 180-day review and comment period has been provided, ending on July 25, 2001.

The LAX Master Plan

The LAX Master Plan describes four project alternatives, as follows:

• No Project Alternative: This alternative assumes that no new improvements will be

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made at LAX before 2015, with the exception of any projects that are already planned at

the airport. No major vehicle access improvements would occur. Capacity and operating

constraints would limit future annual passenger growth to 79 million annual passengers

(MAP) by 2015, the accommodation of 3.1 million annual tons (MAT) of cargo by 2015

and approximately 2,300 daily operations.

• Alternative A - Added Runway, North: This alternative adds a new runway on the north

airfield approximately 400 feet north of the existing runways. The efficiency and safety of

the taxiway structures on both the north and south airfields would be improved. A new

west entrance and terminal with additional aircraft gates, rental car facilities and parking

would be added. A people mover would provide passenger access from a new parking

garage and the west terminal to new concourses west of the Tom Bradley International

Terminal and all other terminals. Cargo facilities would be expanded in the southeast

corner of the airport. The improvements included in Alternative A would enable LAX to

accommodate 98 MAP, 4.2 MAT of cargo and approximately 2,700 daily operations by

2015. Major vehicle access improvements would include the LAX Expressway, which

would provide direct vehicular access from the San Diego (405) Freeway to an airport

ring road. In addition, the Green Line would be extended into the airport.

• Alternative B - Added Runway, South: This alternative adds a new runway to the

south. The existing southern runways would be relocated north in order to increase the

lateral spacing between all three runways. Otherwise, this alternative includes the same

features associated with Alternative A: taxiway structure improvements, new west '

entrance and terminal, people mover, cargo facility expansion, LAX Expressway, and

Green Line extension. The alternative would accommodate 98 MAP, 4.2 MAT of cargo

and approximately 2,700 daily operations by 2015,

• Alternative C - No Additional Runway: LAWA staff is recommending implementation of

this alternative, which would not add any additional runways at LAX. The outboard

northern runway would be relocated and the inboard northern runway would be

lengthened to accommodate larger aircraft. Taxiways would be added to the two northern

and southern airfields to improve safety and operational efficiency. Other features

associated with Alternatives A and B, including new west entrance and terminal, people

mover, expanded cargo facilities, LAX Expressway, and Green Line extension, would be

included in this alternative. Completion of the improvements included in Alternative C

would allow LAX to accommodate 89 MAP, 4.2 MAT of cargo and approximately 2,300

daily operations by 2015.

Environmental Impacts

Development of LAX in accordance with Alternative A, B or C will have significant

environmental impacts on Southbay and Westside neighborhoods. The No Action/No Project

Alternative will also have dramatic effects if the airlines continue to schedule additional flights

at LAX until the airfield and adjacent road systems reach complete gridlock. The DEIR

identifies many significant and unmitigable environmental impacts associated with the three

alternatives in the areas of aircraft noise, construction noise, land use, on- and off-airport

surface transportation, social impacts, air quality, cultural resources, and human health and

safety. In addition, staff has identified several environmental impacts to the City of Santa

Monica that were not addressed in the DEIR, including traffic and circulation impacts,

socioeconomic impacts, timing of mitigation measures relative to airport enhancements, and a

variety of environmental impacts associated with shifting of air traffic to Santa Monica Airport.

Attached is a draft of staff's technical comments collected from the relevant City departments.

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DEVELOPING A FORMAL CITY POSITION

In adopting a formal position on the LAX Master Plan, there are several important elements to

consider, including:

• Implementation of Master Plan Alternatives A, B, or C will undoubtedly have significant

environmental consequences for Santa Monica and the entire region, including

additional traffic pressure on Lincoln Boulevard;

• The No Project / No Action Alternative could have significant environmental impacts on

Santa Monica as increasing airline congestion at LAX diverts even more corporate jets

to Santa Monica Airport;

• Master Plan improvements at LAX, including infrastructure improvements such as a

people-mover and the Green Line transit extension, will enhance air travel convenience

and options for Santa Monica's residents, businesses and visitors;

• Airports play an important economic role in the region. Pursuing development of

airports throughout the region allows for all areas to accrue economic benefits while

more fairly spreading the associated environmental impacts. However, limiting LAX to

its current capacity, even if it is assumed that EI Toro Marine Base is developed as a

commercial airport, is expected to have some dampening effects on future air travel

options in the region, with resultant impacts on future economic growth.

• Several critical traffic-mitigating improvements are programmed for later phases of

implementation, while the development of new traffic-generating on-site airport facilities

occur in early phases of the Master Plan. As a result, traffic impacts will be exacerbated

for many years.

Given the variety of issues associated with LAX, there are variations and permutations of a

formal position that the City Council may wish to consider, including:

1. Opposition to all of the LAX Master Plan Alternatives, as currently proposed, due to the

significant and unavoidable environmental impacts associated therewith;

2. Opposition unless the DEIR fully analyzes the environmental consequences of the

Master Plan and provides acceptable mitigation for impacts on Santa Monica;

3. Opposition unless the Master Plan provides for guaranteed infrastructure, facilities, and

airside acreage to fully support transient business aircraft and fixed-base business

operations, including a minimum of three fixed-base operations for business jets and an

exclusive runway for small to mid-size jets;

4. Opposition unless the Master Plan phasing provides for surface transportation

enhancements to coincide with or precede any air transportation enhancements; and

5. Opposition unless the relocation and expansion of the LAX Transit Center is included

as a Master Plan commitment at a location that will promote the use of transit.

On June 25, 2001, the City Council of Culver City formally found the DEIR to be inadequate

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and reiterated their formal opposition to capacity expansion at LAX. In addition, Culver City

and West Hollywood have joined Santa Monica in the coalition of cities supporting a regional

airport plan. The City of Beverly Hills has not taken a formal position on the Master Plan.

NEXT STEPS

Staff will be submitting technical comments regarding the Master Plan and DEIR prior to the

close of the comment period. If the City Council chooses to take a formal position regarding

the Master Plan, this position will be conveyed to the City of Los Angeles and the Federal

Aviation Administration during the comment period. Since the release of the Master Plan, a

new Mayor and several new City Councilmembers have taken office in the City of Los Angeles.

Because Mayor Hahn is expected to reconsider the scope and approach of the LAX Master

Plan, it is important that Santa Monica provide technical comments and a formal City position

to ensure that these comments and positions are considered with respect to any future

iterations of the Master Plan.

BUDGET/FINANCIAL IMPACT

Taking a formal position on the LAX Master Plan will have no impact on the budget.

CEQA ANALYSIS

Taking a formal position on the LAX Master Plan does not require independent review under

the California Environmental Quality Act (CEQA), as the proposed project must be analyzed by

the appropriate lead agencies, pursuant to the guidelines of CEQA, prior to taking action on

the Master Plan.

RECOMMENDATION

It is recommended that the City Council adopt a formal position opposing the Master Plan

Alternatives, on the basis that the City of Santa Monica cannot consider support of any Master

Plan Alternatives unless the following occur: 1) The DEIR fully analyzes the environmental

consequences of the Master Plan and provides acceptable mitigation for impacts on Santa

Monica; 2) The Master Plan provides for guaranteed infrastructure, facilities, and airside

acreage to fully support transient business aircraft and fixed-base business operations,

including a minimum of three fixed-base operations for business jets and an exclusive runway

for small to mid-size jets; 3) The Master Plan phasing provides for surface transportation

enhancements to coincide with or precede any air transportation enhancements; and 4) The

relocation and expansion of the LAX Transit Center is included as a Master Plan commitment

at a location that will promote the use of transit.

Prepared by: Suzanne Frick, Director, Planning and Community Development

Andy Agle, Deputy Director, Planning and Community Development

Jeff Mathieu, Director, Resource Management

Bob Trimborn, Airport Manager

Attachment: Draft staff comments on the LAX Master Plan DEIR/EIS (below)

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ATTACHMENT

CITY OF SANTA MONICA

STAFF COMMENTS ON LAX MASTER PLAN DEIR

DRAFT

SURFACE TRANSPORTATION

Environmental Impacts and Analysis

Figure 4.3.2-4 of the DEIR identifies street segments that will experience more airport traffic

with implementation of the LAWA staff-recommended Alternative C.

Several street segments in Santa Monica are identified to receive more airport traffic.

However, the DEIR fails to analyze any traffic intersections in Santa Monica, in spite of our

NOP letter's identification of 22 intersections in Santa Monica for analysis. The DEIR is clearly

flawed in this analysis of the surface transportation impacts of the Master Plan.

The DEIR analysis relies upon several Master Plan transportation improvements, including the

LAX Expressway, people mover, and Green Line transit extension, to help mitigate the Master

Plan surface transportation impacts. However, the creation of new on-site airport facilities,

including new terminal facilities, is proposed to occur during Phase 1 of the Master Plan, while

the aforementioned transportation improvements occur after Phase 1. This phasing creates a

multi-year period where surface transportation impacts will be severely exacerbated prior to

implementation of improvements that help mitigate those impacts.

Appropriate Mitigation Measures

The DEIR must fully evaluate the surface transportation impacts associated with the Master

Plan, and provide mitigation measure to minimize those impacts. For any Santa Monica

intersections that are negatively impacted, mitigation measures that are acceptable to the City

of Santa Monica must be proposed. Any Master Plan improvements that help mitigate the

surface transportation impacts of increased passengers and cargo must be implemented prior

to development of new terminal facilities.

The DEIR forecasts a 50 percent increase in transit usage as a result of implementation of

Phase I, which includes an improved location for the transit center and additional fly-away

locations. In order to ensure the maximization of transit possibilities, the siting and

development of a new transit center must be identified and approved by bus services

providers, including the Santa Monica Big Blue Bus.

GENERAL AVIATION

Environmental Impacts and Analysis

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A critical concern for Santa Monica is the impact of any Master Plan changes on the general .....

aviation (GA) facilities and operations at LAX. Reduction of LAX facilities and/or displacement

of operations, particularly business jet operations, create a substantial impact on other airports

in the basin. This is already a problem because of the congestion and lack of adequate

business jet facilities at LAX.

Santa Monica Airport (SMO) has been subjected to increases in transient business jets using

our air field due to inadequate air side and landside facilities at LAX. Additionally these aircraft

using Santa Monica Airport are also increasingly of a size that appear inappropriate in scale

and character for both the airport facility and the surrounding community ----- which is tightly

situated in densely populated residential areas. This represents a very substantial concern and

problem which requires any developments at LAX to not only stop the displacement of

business jet aircraft but must, in fact, return these previously displaced traffic to its proper

setting.

As the proposed LAX Master Plan repeatedly states, LAX is the "gateway" facility for the

region and the hub of economic activity. The re-positioning of LAX as the center of business jet

aircraft activity will allow better integration of connections and coordination of business travel

and meeting. LAX is the most appropriate setting for business jet aircraft accessing the

Southern California area, particularly the westside of the region.

Business jet aircraft are more appropriately served at LAX as it can provide for a higher margin

of safety with longer runway surfaces and safety areas, more high speed turn outs and

taxiways, dedicated airspace, continuous tower support and a full complement of emergency

facilities and services. The re-focusing of business jet aircraft activity to LAX will provide

opportunities for better integration with commercial air operations, rental cars, customs and

better maintenance and support services for such aircraft.

The DEIR states that under all the development alternatives, including the LAWA staffrecommended Alternative C, the total acreage committed to GA will be reduced from 14 acres

to between 5 and 6 acres. A stunning 62% reduction can only further displace GA operations.

Sharing any space with air carrier maintenance activity would likely diminish or overwhelm less

financially lucrative GA jet service. The continued displacement of GA operations from LAX

has had, and will continue to have, significant environmental consequences for the Santa

Monica Airport and the City of Santa Monica. The DEIR must evaluate these environmental

impacts, especially in the areas of noise, surface transportation, airspace safety and air quality.

GA has always been a vital part of LAX history and should remain so, particularly the business

jet aircraft, which are becoming a significant part of the GA fleet. In all of the alternatives

presented in the draft LAX Master Plan, the plan indicates an expansion in GA facilities by

increasing total square footage from 144,000 square feet to 244,000 square feet with the

addition of a new 100,000 square foot hangar facility at Sepulveda and Century. However thls

is not analyzed in the DEIR, nor reconciled with the intended reduction of acreage for GA use.

Appropriate Mitigation Measures

The DEIR must fully evaluate the environmental impacts associated with decreased GA

facilities, and provide mitigation measure to minimize those impacts. In order to provide

adequate opportunities for the basing of business aircraft, as well as to adequately handle

transient business, larger areas of unimpaired space are needed for vehicle parking and

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servicing. We recommend that no reduction in GA-committed space be made. LAWA should

provide a covenant or land restriction to the permanence of dedicated acreage, expanded

facilities and perpetual operating Fixed Base Operations (FBOs) for business jets. LAX should

provide for three FBOs, which would truly allow a full range of services and healthy

competition.

The proposed airside improvements with additional taxiways and aircraft movement areas are

of significant importance to improving GA-business jet services. An existing and rapidly

growing problem at LAX is the airfield congestion and related delays resulting in uncertain

scheduling and expensive ground "idling." The proposed extensive aircraft taxiway and other

movement area improvements could provide readier access to and from runways for GAbusiness jet aircraft. The improved separation of runways could increase the number of aircraft

that can takeoff and land in tandem, allowing for better interposition of GA business jet aircraft

---- if the additional capacity isn't consumed by "sharing" facilities with air carrier or cargo uses.

The dedication of one runway exclusively for small to mid-size jets (small to mid-size in terms

of LAX but unquestionably large for adjacent GA airports) has great potential to not only stem

the rate of displacement of GA jet aircraft, but also to be an affirmative support for the

operations of GA jet aircraft and to provide a positive basis for the return of those previously

displaced to SMO. In order for the business community to make appropriate decisions and

investments, such as basing jet aircraft operations, the plan needs to formally dedicate a

runway to use by GA jet aircraft in perpetuity, otherwise air carrier and cargo demand will

overwhelm the less financially lucrative business jet users.

The provision of a dedicated runway for business aircraft would also enhance operations and

safety in the region surrounding LAX. Instrument departures from Santa Monica must be

integrated with LAX departures as their pathways intersect. This requires intense coordination

between the two air traffic control towers and the region and often results in aircraft having to

sit idling for extended periods of time at Santa Monica waiting clearance at LAX. These aircraft

should all be operating under the control and guidance of a single tower, which has the

essential benefit of direct visual contact and a single voice. In addition, the establishment of a

primary business operations center at LAX will also allow for the development of more efficient

air space planning and procedures for both departures and arrivals. A dedicated GA runway

must also have full operational support services such as a dedicated instrument landing

system, approach lights and air traffic control tower.

Total airside acreage committed to general aviation support facilities must expand beyond the

current 14 acres in order to fully support general aviation, includinq business jet operations,

with a full compliment of both based aircraft and transit parking spaces, executive terminal

facilities, vehicle parking and pick-up/drop facilities and transport to rental vehicle sites and

local hotels.

The Master Plan must provide for, at minimum, three full-service fixed-base operators

specifically for general aviation. The Master Plan must include expanded and enhanced

general aviation capacity, services, and facilities, particularly for jet aircraft. An increase in

facility space to at least 244,000 square feet should be accomplished as soon as possible. '

Enhanced, fully incorporated and dedicated ground transportation improvements, particularly

access roadways and services, to and from general aviation facilities, including general

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aviation I business user exclusive access roadways and entries, should be incorporated in the

Master Plan. Parking improvement plans must include enhanced vehicular parking, as well as

dedicated drop off/pick up accommodations at all general aviation facilities.

The development of an operational and business plan is essential for the maintenance and

enhancement of general aviation, particularly with regard to GA jet aircraft operations at LAX,

including appropriate long-range feasibility and trend studies. A business plan and aggressive

marketing program is necessary to attract and recapture general aviation jet aircraft activity at

the earliest possible date.

INDUCED SOCIO-ECONOMIC IMPACTS

Environmental Impacts and Analysis

The DEIR finds that the Master Plan alternatives will induce between 13,000 and 30,000 new

households in the region, including between 2,600 and 4,800 new households in a 10-mile

radius. The DEIR concludes that this is a small amount in comparison to expected total growth

in the region. However, given the high cost of housing in the region, and particularly in the

Westside areas near LAX, providing affordable housing for these new households will be a

critical local and regional impact.

Appropriate Mitigation Measures

The DEIR must include measures to mitigate the lack of availability of affordable housing for

new household growth that will be induced by the Master Plan.

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